Metropolitan landscapes in the Netherlands: effects of policy shifting Alexandra Tisma 1. Introduction The landscape of the Netherlands is a man-made, cultural landscape, mainly flat, apart from regions in the eastern and southern extremities, lying between -6 and 20 meters above sea level. Since the beginning of the last millennium, settlers, farmers, city dwellers and engineers have created a system of dykes, barriers and locks defending a part of the inner land, as well as the coastline of the whole country. The abundance of land units with a man-controlled water level has made the word "polder" a Dutch contribution to many languages of the world. The current land use in the Netherlands is characterized by the considerable prevalence of agricultural areas (65%), almost the smallest percentage of forests in Europe (about 10%) and, surprisingly enough, not so high a percentage of inner waters as one might expect (about 5%). In addition, 3,8% of "nature" areas have also been created by man, often by transforming the agricultural landscape into areas for plants and animals so as to increase biodiversity, but with the limited access for people. Figure 1. Anna Paulowna polder in the province of North Holland dating from 1846 (photo: Paul Paris, Amstelveen) 1 There are many features of the Dutch landscape illustrated by the picture above: we see a typical lowlands landscape, with the prevalence of agricultural land, the village of Kleine Sluis somewhere in the distance, a canal in the middle, as well as a mixture of crop fields, pastures and colorful flower production fields for which this country is renown worldwide. Everything is obviously in perfect order and symmetry, with clear borders between urban and rural, neat and beautiful. This landscape perfectly illustrates the four rules of Dutch spatial planning school (Reh et al., 2005): purpose of usefulness, economy of resources, meaning of the place and clarity of form. What is not visible in the picture is the labyrinth of rules and regulations of different policies aimed at developing, protecting, limiting or stimulating such a landscape development. In order to illustrate the effects of the shifting policy and its impact on landscape, we will rely on the example of the use of landscape for recreational purposes, which is becoming an increasingly important issue in the landscape policy. In Western countries, the cohesion between cities and surrounding green areas within a so-called metropolitan landscape is considered vital for any sustainable urban living conditions. The green and open space surrounding and intersecting city regions is no longer regarded as undeveloped space, but an important asset for sustainable urban living conditions. The current standards of wealth, dynamics, leisure time and mobility, typical for Western metropolitan population, generate the need and possibilities to enjoy green open spaces as “a consumable for all civilians” (Jaarsma and Van Dijk, 2005): the surrounding regional open space, green and rural environment that serves as urban residents’ communal garden. Metropolitan landscapes should, therefore, be treated as multifunctional as they are seen not only as images for admiration, but also as places easily accessible to inhabitants for all forms of relaxation and recreation. 2 Separation of space in the Netherlands Within the spatial planning policy of the Netherlands, space is divided between "Urban" and "Rural" realms. For several decades now the aim of this national policy has been to keep the urban growth confined to compact cities in order to protect rural landscape from urbanization. However, this policy has never been too strict, hence allowing for the development of the so-called urban fringes, i.e. areas under the pressure of constant urban expansion. They exhibit a mixture of urban and rural functions, resulting in rural landscape fragmentation. The development of rural areas within the national policy falls under the competence of the Ministry of Agriculture, Nature and Food Quality (LNV) while the development of urban areas falls under the competence of the Ministry of Housing, Spatial Planning, and the Environment (VROM). The two ministries generally cooperate on common issues related to landscape development, even though they sometimes also develop their own policies for the same areas. The reasons for this are very complex and mainly process-related, and will not be tackled in this paper which is primarily concerned with the physical manifestation of landscape-related policy decisions. Although policies of the above-mentioned ministries overlap in many aspects, the difference between the approaches of the two is that LNV generally uses a direct approach in its policy of nature protection and land acquisition for nature development, while VROM looks at the landscape in combination with other 2 spatial functions, in other words, it focuses not only on the protection but also on the possibilities for new developments. In theory, this sounds rather good but, in practice, to understand who is doing what, when and how, can be very difficult, not only because the landscape policy issues are distributed between the two ministries, and additionally between their respective departments, divisions or portfolios, but also because the organization and division of tasks within the two ministries changes all the time. The map of all the national and international landscape protection policies that apply to the Netherlands (Figure 2) is one illustration of the situation. Figure 2. National and international landscape protection policies in the Netherlands In this figure, numbers 1 - 7 indicate the number of overlapping policy layers. For example, the darkest patch is mostly in the central part of the country, near Hooge Veluwe –the oldest National Park in the Netherlands, recently declared a Cultural Landscape, belonging to National Ecological Network, UNESCO, Belvedere and Natura 2000 protected areas. Of course, there are always exceptions to these trends, the most recent and very important being the two years old Landscape Agenda program (developed in cooperation between the two ministries) and the Beautiful Netherlands program (developed only by VROM). These two overlap again, but still treat the landscape in a multifunctional and integral way, trying to incorporate new insights and approaches to the landscape development and to stop fragmentation of rural landscape, especially in urban fringes. The problem to be solved is that such an ambitious effort is not sufficiently supported by adequate legal and financial instruments (PBL, 2009). 3 Leisure landscapes of the rural Netherlands For many years, geographers, planners, landscape architects and other professionals have been dealing with the classification of the Dutch landscape 3 types. The knowledge about different landscape layers and their changes over time is abundant and varied. However, the existing classifications encompass only rural landscapes and are generally based on geological and soil characteristics, as well as on the historic land-use development, and not on their visual or multifunctional character. These classifications exclude urban space and mention it usually as one unspecified category only, while urban fringes do not appear at all. In the recent Dutch policy documents, the issues of recreation and landscape have been given plenty of attention, often with contradictory goals. On the one hand, the objective of landscape development policy is to protect landscape from urbanization. On the other, there is a growing pressure to open, intensify and transform landscapes in accordance with the leisure needs of citizens. As a consequence, this means imposing to some extent urban functions to rural landscapes and bringing in elements that are as heterotopias fully ignorant of surrounding landscape (Figure 3). The question of how to fit this objective into the existing, mostly open, landscape is not on the agenda of either national or local policies. Moreover, more detailed analyses of rural recreational potentials are not related to landscape typologies. Figure 3. Ski hill in Bergsche hoek, near Rotterdam (Photo: Paul Paris, Amstelveen) In order to assess the recreational potential of Dutch landscapes, we conducted a research which involved the overlapping of landscape typology and existing recreational facilities. For that purpose, Dutch landscapes have been classified in eight types (Figure 4). The description of these cultural landscape types has been based on a number of classifications, those by Keuning (1946) and Zonneveld (1991) being among the most important ones. Both sources are generally accepted as important for landscape classification in the Netherlands. The basis of the classification is a combination of soil characteristics and historical land use. 4 Figure 4. Landscape types (Tisma and Lörzing, 2008) The second step was to categorize recreational space, making a distinction between three main levels of scope, namely: the large "areas", the long but narrow "lines" and the small, concentrated "points" (Table 1). This simple division is in line with the perception elements made by Kevin Lynch (1971), where areas are described as districts, lines as paths or edges, and points as nodes or landmarks. Similarly, in ecology terms, patch, corridor and stepping stone are used. 5 Areas: Large surface Points: Recreational Lines: Recreational areas amenities routes and networks National parks Theme parks Network of bicycle trails National landscapes Zoos Network of